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Date Filed: 05/16/2016

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[DO NOT PUBLISH]

IN THE UNITED STATES COURT OF APPEALS
FOR THE ELEVENTH CIRCUIT
________________________
No. 15-12325
Non-Argument Calendar
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D.C. Docket No. 4:14-cv-00171-MW-CAS

JOHNNY L. CANNON,
Plaintiff - Appellant,
versus
SECRETARY, U.S. DEPARTMENT OF AGRICULTURE,
Defendant - Appellee.
________________________
Appeal from the United States District Court
for the Northern District of Florida
________________________
(May 16, 2016)

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Before MARTIN, WILLIAM PRYOR and JILL PRYOR, Circuit Judges.

JILL PRYOR, Circuit Judge:
Plaintiff Johnny Cannon appeals the dismissal of his claim against Thomas
Vilsack, Secretary of the United States Department of Agriculture (USDA), for a
violation of the Equal Credit Opportunity Act (ECOA), 15 U.S.C. 1691e. We
agree with the district court that Cannons ECOA claim is time-barred and affirm
the district courts dismissal.
I.
This case arises out of subsidies the USDA paid to Cannon. From 2005
through 2007, Cannon leased a farm, known as Farm 4360, from Thomas Beddard.
Cannon applied for subsidy payments through the USDAs Direct and CounterCyclical Payments Program. After the USDAs local Farm Service Agency
(FSA) approved his application, he was paid subsidies.
In 2007, the FSA found that although Cannon enrolled 733.5 acres of land in
the Direct and Counter-Cyclical Payments Program, he leased and controlled only
13 acres. The FSA determined that, contrary to its own records, Beddard did not
own all of Farm 4360 and thus Cannon should not have received subsidy payments
for the land that Beddard did not own. The FSAs county office determined that
Cannon was not required to refund the overpayments from 2005 and 2006 because
he relied on incorrect information maintained by the FSA. In August 2007, the
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FSAs state executive director rejected the county offices findings and required
Cannon to repay the subsidies he had received for the land that Beddard did not
actually own.
Cannon appealed this decision to the USDAs National Appeals Division,
which affirmed the state executive directors decision. Cannon subsequently
requested review by the National Appeals Division Director, who ordered him to
repay $42,000 he received for land leased, but not owned, by Beddard.
In May 2011, Charlotte Blackburn-Smith, a UDSA employee, told Cannon
that he had been the victim of discrimination based on his race during the entire
review and appeal process. In November 2011, Cannon filed a race discrimination
complaint with the USDA.
On March 31, 2014, Cannon filed this lawsuit in federal district court against
Vilsack. In his amended complaint, Cannon brought an ECOA claim, alleging that
the USDA discriminated against him based on his race throughout the
administrative process. 1 Vilsack moved to dismiss the claim as time-barred. The
district court granted the motion. 2 This appeal followed.
1

In the first amended complaint, Cannon also asserted claims against a John Doe
defendant, the unidentified USDA employee who was responsible for investigating Cannon and
representing the USDAs interests, alleging the employee improperly discriminated against him.
Because Cannon voluntarily dismissed the claims against John Doe under Federal Rule of Civil
Procedure 41(a), they are not before us on appeal.
2

The district court dismissed under Federal Rule of Civil Procedure 12(b)(1) for lack of
subject matter jurisdiction, holding that because ECOAs statute of limitations barred the claim,
the United States had not waived its sovereign immunity and the court lacked subject matter
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II.
ECOA prohibits discrimination against an applicant for credit based on
race, color, religion, national origin, sex or marital status, or age and gives
aggrieved applicants a private right of action to sue [a]ny creditor who fails to
comply with any requirement imposed under [ECOA]. 15 U.S.C.
1691(a), 1691e(a). As part of the Dodd-Frank Wall Street Reform and Consumer
Protection Act (Dodd-Frank Act), Pub L. No. 111-203 1085(7), 124 Stat. 1376,
2085 (2010), Congress extended the statute of limitations period for ECOA claims
from two years to five years. Compare 15 U.S.C. 1691e(f) (2011) (requiring
claims to be brought in five years); with id. 1691e(f) (2010) (requiring claims to
be brought in two years). The parties agree that the amended statute of limitations
went into effect in July 2011. Although Cannons ECOA claim accrued no later

jurisdiction. In the alternative, the district court held that even if ECOAs time bar was not
jurisdictional, the ECOA claim was still time-barred and should be dismissed for failure to state a
claim.
We need not decide for purposes of this appeal whether ECOAs time bar is jurisdictional
such that a time-barred ECOA claim should be dismissed for lack of subject matter jurisdiction
rather than failure to state a claim. There is no question that, like the district court, we have
jurisdiction to consider and apply ECOAs statute of limitations in this case. Whether ECOAs
time bar is a jurisdictional requirement or only an affirmative defense does not impact our
analysis here because the parties raise no issue on appeal about whether Vilsack waived the
statute of limitations, whether Cannon is entitled to equitable tolling, or who bears the burden of
proof. See John R. Sand & Gravel Co. v. United States, 552 U.S. 130, 133-34 (2008) (discussing
whether time bars are jurisdictional or constitute an affirmative defense). For our purposes and
for the parties purposes, it makes no difference in this case whether we treat ECOAs time bar
as a jurisdictional requirement or an affirmative defense. Accordingly, we leave this issue for
another day.
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than May 2011, 3 he waited until March 2014 to sue. Vilsack asserts that Cannons
claim is time-barred because the two-year statute of limitations, which was in
effect when his claim accrued, applies. But Cannon argues that his claim is not
time-barred because the amended five-year statute of limitations, which was in
effect when he filed suit, governs. We agree with Vilsack.
We review de novo the district courts grant of Vilsacks motion to dismiss.
See Gonsalvez v. Celebrity Cruises Inc., 750 F.3d 1195, 1197 (11th Cir. 2013).
[D]ismissal on statute of limitations grounds is appropriate if it is apparent from
the face of the complaint that the claim is time-barred. Id. (internal quotation
marks omitted). Because we conclude that a two year statute of limitations applies,
it is apparent from the allegations in the complaint that Cannons claim is timebarred.
We have previously held that an amended statute of limitations retroactively
applies to a cause of action that accrued prior to, but was filed after, the
amendment went into effect only when (1) the limitations statute is remedial or
procedural in nature and not a substantive limitation on a statutory right or (2) the
legislature clearly manifest[ed] an intent to have an amended limitations statute
3

Under ECOA, the limitations period begins to run on the date of the occurrence of the
violation. 15 U.S.C. 1691e(f). Vilsack asserts that Cannons claim accrued on August 13,
2007, when the state executive director ordered him to repay, because this was the first adverse
action the USDA took against him. Cannon asserts that his claim did not accrue until May 2011,
when he first learned of the discrimination. We need not decide precisely when Cannons claim
accrued because even if it did not accrue until May 2011, it was untimely.
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apply to existing causes of action. Sarfati v. Wood Holly Assocs., 874 F.2d 1523,
1525 (11th Cir. 1989). Applying this test, we hold that ECOAs amended fiveyear limitations period is not retroactive.
First, we consider whether ECOAs limitations period is a substantive
limitation on a statutory right that is neither remedial nor procedural in nature. In
Sarafti, we explained that [a] statute of limitations that restricts a right created by
a statute rather than a right at common law generally is deemed to be a substantive
limit on the right as opposed to a mere procedural limit on the remedy. Id. We
recognized an exception to this general rule when a right created by statute is in
one act and the limitations period is in another act. Id. at 1526. When the private
right of action and limitations period are in separate acts, then we presume the
limitations period is not . . . an integral part of the right itself but only a
procedural limit on the remedy. Id.
We conclude that ECOAs limitations period is a substantive limitation that
is neither remedial nor procedural in nature. The limitations provision restricts a
right of action created by a statutethat is, an aggrieved partys private right of
action to sue a creditor under ECOAnot a common law claim. See 15 U.S.C.
1691e(a). Also, the provision creating the private right of action is contained in
the same section of the United States Code as the limitations period. See id.
1691e(a), (f). Moreover, both provisions are found in the same act. See Act of
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October 28, 1974, Pub. L. No. 93-495 503, 88 Stat. 1500, 1521, 1524 (1974).
Although Congress subsequently extended ECOAs limitations period in the DoddFrank Act, Sarfati makes clear that when the provisions setting forth the original
limitations period and creating the cause of action are in the same piece of
legislation, we should treat the statute of limitations as substantive. See Sarfati,
874 F.2d at 1527. Accordingly, ECOAs amended limitations period does not
apply retroactively to claims that accrued before, but were filed after, the amended
limitations periods effective date.
Cannon argues that we should treat ECOAs statute of limitations as
remedial because ECOA as a whole is remedial in nature. Under Cannons
reasoning, any time Congress amends the limitations period for any private right of
action created by statute, the amendment should be retroactive because any statute
creating a private right of action is remedial. This argument cannot be squared
with Sarfati. If Cannon is correct, then in Sarfati we would have retroactively
applied the amended limitations period because the underlying statute as a whole
was remedial; it created a private right of action. Instead, we focused on whether
the statute of limitations provision, as opposed to the statute as a whole, was

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procedural in nature or a substantive limitation on a statutory right. 4 See id. at

1525.
Second, we consider whether Congress clearly manifested an intent to have
ECOAs amended statute of limitations apply to existing causes of action. We
conclude it did not. Indeed, Cannon presents no argument and points to no
evidence showing that Congress intended the amendment to apply retroactively.
Instead, Cannon argues that we are not bound by Sarfati because we silently
overruled it in Berman v. Blount Parrish & Co., 525 F.3d 1057 (11th Cir. 2008).
As an initial matter, a later panel cannot overrule a prior ones holding even
though convinced it is wrong unless the first panels holding is overruled by our
Court sitting en banc or by the Supreme Court. Smith v. GTE Corp., 236 F.3d
1292, 1300 n.8 & 1303 (11th Cir. 2001) (internal quotation marks omitted).
Accordingly, to the extent that Sarfati and Berman conflict, we are bound by
Sarfati because it is the earlier case and has not been overruled en banc or by the
Supreme Court.

Cannon asserts that the district court in Grady v. Bunzl Packaging Supply Co., 874 F.
Supp. 387 (N.D. Ga. 1994), adopted his approach and considered whether a statute as a whole
was remedial to determine whether an amendment to a statute of limitations applied
retroactively. Of course, we are not bound by the district courts analysis in Grady. Whats
more, Grady does not actually support Cannons position. Although in Grady the district court
used some ambiguous language when it suggested that whether a limitations period applies
retroactively depends on whether the statute is remedial or procedural in nature, its analysis
focused on whether the statute of limitations is procedural or substantive, not whether the
statute as a whole is remedial. Id. at 392.
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In any event, we see no conflict between our decisions in Berman and

Sarfati. In Berman, we considered whether a statute that extended the limitations
period for certain securities claims from three years to five years revived claims
that had expired at the time the amendment went into effect. We held that because
the plaintiffs claims had expired before the effective date of the . . . new statute
of limitations . . . [,] the district court did not err by dismissing the complaint.
Berman, 525 F.3d at 1059. Berman never addressed whether an amended statute
of limitations applied retroactively to a claim that had accrued but not expired at
the time the amended statute of limitations went into effect.
At the time Cannons ECOA claim accrued, he had two years to sue.
Although ECOAs limitations period was extended to five years before Cannon
filed suit, we hold the extended limitations period does not apply retroactively to
Cannons claims. Because Cannon failed to sue within two years of when his
claim accrued, the district court correctly concluded that his claim was barred by
the statute of limitations.
V.
Because the statute of limitations bars Cannons ECOA claim, we affirm the
district courts dismissal.
AFFIRMED.